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Disaster Risk Reduction and Management Framework for Kennon Road
Conference Paper · September 2021
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DISASTER RISK REDUCTION AND MANAGEMENT
FRAMEWORK FOR KENNON ROAD
Joseph Rei Mark Co
Affiliation: Department of Public Works and Highways
E-mail: engr.jrmc@gmail.com
Conference: 16th Road Engineering Association of Asia and Australasia Conference
Presentation date: 14 September 2021
Word count: 5097
Word equivalents: 7347
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ABSTRACT
Kennon Road is a primary national road with historical and strategic significance that helped spur the development of
Baguio City. This thoroughfare had suffered from many road slope disasters due to its topographical location. Using the
Japan International Cooperation Agency and DPWH road slope manual, six types of road slope disasters have been
identified namely: 1) soil slope collapse, 2) rock slope collapse, 3) landslide, 4) road slip, 5) debris flow, and 6) river
erosion. Based on records, the road had been closed at least 27 times during the period 2013 to 2019 due to typhoons.
Because of this, motorists had shifted to using Rosario-Pugo Road and Marcos Highway when going up to Baguio which
is a longer route. On the point of arterial network redundancy, it is essential that this road remain open to the travelling
public to serve as an alternative access route in case of road repairs, blockages, and even accidents. In this paper, the
researcher proposes a disaster risk reduction and management framework for Kennon Road which is congruent to the four
principles of the National Disaster Risk Reduction and Management Council: 1) prevention and mitigation, 2)
preparedness, 3) response, and 4) rehabilitation and recovery. Moreover, the researcher proposes to consider a PublicPrivate Partnership scheme that would enable the government to tap a highway concessionaire who will be in-charge of
the project from its financing, design, construction, operation, and maintenance thereby improving the level of service,
and most importantly ensuring the safety of all road users.
INTRODUCTION
Overview
Kennon Road (N54), which is also known as Rosario-Baguio Road, is one of the three major highways leading to Baguio
City along with Marcos Highway and Naguilian Road. Kennon Road is the shortest route from Rosario, La Union to
Baguio City with a total length of 33.7 km compared to passing along Rosario-Pugo Road and Marcos Highway which
has a combined length of 47.4 km.
Kennon Road starts at the intersection with Manila North Road (N2) in the Municipality of Rosario, La Union and ends
at a roundabout connected with Aspiras-Palispis a.k.a. Marcos Highway (N208) and Gov. Pack Road (N54) in Baguio
City as shown in Figure 1.
Figure 1: Alignment of Kennon road
Historical background
On June 1, 1903, the Philippine Commission decreed Baguio as the “Summer Capital of the Philippines” according to
Zarate. Because of this, they needed a road linking the uplands to the lowlands in order to develop Baguio. By December
1900, Captain Charles W. Meade, City Engineer of Manila, spearheaded the construction of the “Benguet Road”. The
project had an initial budget of USD 75,000 which was not enough to complete the road and had Capt. Meade relieved
from his post by August 20, 1901.
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Afterwards, N. M. Holmes took over as engineer and was given an additional budget of USD 225,000.00 to complete the
project. However, Holmes encountered labor problems with the natives, bad weather, and landslides. To determine the
most feasible alignment for the road, he consulted Colonel Lyman W.V. Kennon who was known to have experience in
engineering works in mountainous terrain.
Based on Zarate’s account, around 2,300 to 4,000 workers were employed to build the road. They have different
nationalities such as American, Hawaiian, Indian, Mexican, Chinese, German, Irish, English, Swedish, French, Japanese,
and Filipino. Thus, this project was the first to employ overseas workers in the Philippines. The breakdown of workers
are as follows: Filipinos (49%), Japanese (22.5%), Americans and Europeans (17.5%), Chinese, Latin Americans and
others (11%). Sadly, only half of them survived while constructing the road due to accidents and malaria.
Cameron Forbes, who was the Governor General of the Philippines, used reverse psychology to ensure the completion of
the project by betting with Col. Kennon that the road could not be finished by January 30, 1905. Conversely, this further
motivated the workers to help their supervisor win the bet. As a result, by January 29, 1905, the road had been completed,
making it one of the oldest roads in the country. After three years, American Gov. General Leonard Wood issued an
executive order naming it as “Kennon Road”.
The road was opened for regular service by March 27, 1905. The construction was no less than a marvelous feat as it
involved workers from 47 different countries. It was also the biggest project ever undertaken by the Americans in the
Philippines at that time, with a total cost of USD 1,966,847.05. While the cost of the heavy works amounted to USD
75,000 per mile (equivalent to approximately PHP 6,000,000 per kilometer). In addition to this, 40 bridges have been
constructed, two were made of steel, and the rest were wood.
Topography
About 98% of the highway alignment passes along the valley of the Bued River and has several river crossings. It has
many slopes above it and is affected by frequent road slope disasters. The road intersects several water tributaries which
are possible sources of flash floods, siltation, and debris flows. Kennon Road is also known for having a “zigzag” shape
particularly from Camp 5 to Camp 6.
It will be interesting to note, however, that this feature was born out of an engineering error. The construction of the road
was done simultaneously from both ends. Nearing the fifth year of construction, they found out that there was an error
in the elevation and the two ends will not meet. Hence, they twisted and turned the road to compensate for the
miscalculations which resulted into the steep road with numerous hairpin bends.
Administrative jurisdiction
At present, the entire Kennon Road is classified as a primary national road which is under the jurisdiction of the
Department of Public Works and Highways (DPWH). Based on the DPWH Road and Bridge Information Application
(RBIA) 2020, the start stationing of the road is: K0214+(-613) and end stationing: K0248+147. It passes along three (3)
District Engineering Offices (DEO) namely: La Union 2nd DEO, Benguet 1st DEO, and Baguio City DEO.
Rationale
In the past years, there have been numerous disaster occurrences along Kennon Road related to slope failures such as
landslides, soil collapse, rock falls, and river erosion due to its difficult topographical location, terrain, and other natural
phenomena such as typhoons. In 2019, the road was also closed from July to November because of road slope disasters.
Owing to this disaster-prone nature of Kennon Road, the researcher aims to propose a disaster risk reduction and
management (DRRM) framework in order to achieve a reliable, safe, and improved road to Baguio City.
REVIEW OF RELATED LITERATURE
JICA and DPWH Guide to Road Slope Protection
Classification of road slope disasters
The Japan International Cooperation Agency (JICA) in partnership with the Department of Public Works and Highways
(DPWH) had come up with a manual to serve as a guide in road slope protection. According to this reference, there are
seven (7) types of Road Slope Disasters namely: 1. Soil Slope Collapse (SC), 2. Rock Slope Collapse (RC), 3. Landslide
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(LS), 4. Road Slip (RS), 5. Debris Flow (DF), 6. River Erosion (RE), and 7. Coastal Erosion (CE). These slope failures
were observed in Kennon Road except for the last type.
Soil slope collapse
On relatively steep slopes, both natural and artificial, the soil mass becomes unstable and collapses suddenly and quickly
into the foot of the road slope. The occurrence is mostly triggered by rainfall infiltration and the collapsed materials are
earths and highly weathered rocks. The volume of collapsed materials is generally more than 200 m3.
Rock slope collapse
Blocks of solid rock or small-scale rock masses on steep rocky walls or slopes become loosened and fall or collapse to
the foot of the road slope. It ranges in size from individual rock fall to small-scale rock mass failure. This phenomenon
results from structural discontinuities and seepage of water, where the structural discontinuities within the rock mass,
such as faults, bedding planes, joints, and cracks, control the type and size of rock slope collapse.
Landslide
Landslides, in a narrow sense, are slow, long-term, continuous deformation of slopes underlain by soils or strongly
weathered rocks along recognizable sliding surfaces. A part of the road swells up by an inch or higher. It is prone to
occur on a gentle slope of the mountain side where the topographic features are observed to be deformed. In contract to
soil slope collapse, the volume of collapsed materials is generally more than 5,000 m3.
Road slip
Road slips include all types of road shoulder collapses, such as soil slope collapse, embankment erosion, and settlement
of road surfaces by various causes, scouring of the toe and so on.
Debris flow
Debris flow is the fast movement of rock fragments, earth, and mud mixed with water along a valley or a river. It is
mostly triggered by heavy rainfall causing rapid excess surface runoff over the road. The materials are composed of
boulders, gravels, sands, silts, and clay mixed with big amounts of water. It occurs in an area with over-steep slope at a
crossing point over the valley.
River erosion
River Erosion is a lateral erosion and subsequent riverbank collapse due to river flow. This initiates scouring of the road
foundation and enlarges or widens into a riverbank collapse.
Landslide Risk Rating System for Baguio, Philippines
Saldivar-Sali and Einstein (2006) had developed a Landslide Risk Rating System for the Greater Baguio Area that can be
used for the physical planning of the area which is part of the location of Kennon Road. According to this research, there
are several factors that can increase or decrease the risk of a landslide hazard such as bedrock geology, slope gradients,
and vegetation. Other factors that favor landslide occurrence include mountainous terrain, humid climate, rainfall,
typhoons, earthquakes, and deforestation caused by human activity.
The bedrock geology of the area that Kennon Road passes is comprised of the Pliocene Baguio Formation (NQbf) which
is built mainly of pyroclastics and the Late Oligocene Zigzag Formation (PNzf) which consists of a series of
conglomerates, sandstone, and shale with limestone lenses. The hazard ratings of these two geologic units were given by
Saldivar-Sali and Einstein as Class II and Class III respectively (Class I – lowest risk, Class V – highest risk).
In terms of slope gradient, the vicinity of Kennon Road is rated as Class II (9-18%) and Class V (>50%). Having steep
slopes makes the area more susceptible to landslides. Runoff velocity also increases proportional to the slope, which
causes soil erosion.
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National Disaster Risk Reduction and Management Framework (NDRRMF)
On June 16, 2011, the National Disaster Risk Reduction and Management Council (NDRRMC) had approved the
NDRRMF which serves as a guide for Local Government Units in crafting their own disaster risk reduction and
management plans. This framework is anchored on four (4) key areas namely: 1) Prevention and Mitigation, 2)
Preparedness, 3) Response, and 4) Rehabilitation and Recovery. This framework was also adopted by the researcher to
suit the needs of Kennon Road.
METHODOLOGY
Data Gathering
The researcher had collected various data that are necessary to assess the state of Kennon Road such as the records of
disaster occurrences, road closures, road condition, bridge condition, and traffic count survey. These data were gathered
through coordination with different DPWH offices namely: Bureau of Maintenance, Planning Service, and Bureau of
Quality and Safety.
Assessment of Engineering Countermeasures
The researcher had coordinated with the DPWH Cordillera Administrative Region (CAR) Regional Office regarding their
proposed slope protection/stabilization works and engineering countermeasures. The appropriateness of these
engineering interventions were assessed based on the JICA and DPWH Road Slope Protection Manual 2019.
Conceptualization of Disaster Risk Reduction and Management Framework
The researcher had come up with a conceptual framework for disaster risk reduction and management (DRRM) of Kennon
Road patterned after the national DRRM framework approved and promulgated by the Office of Civil Defense (OCD)
and NDRRMC.
RESULTS AND DISCUSSION
Data Gathered
Historical disaster occurrences
These are some of the examples of road slope disasters that have occurred along Kennon Road over the past years that
we want to prevent from happening again. A soil slope collapse occurred in Camp 3 due to Typhoon Pepeng last October
10, 2009 as shown in Figure 2.
Figure 2: Soil slope collapse in camp 3 on October 10, 2009
On June 17, 2018, a huge rock fall had severely damaged a vehicle as shown in Figure 3. This left three people injured.
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Figure 3: Rock slope collapse on June 17, 2018
The road is also prone to landslides which blocks major portions of the road and hampers the passage of motorists.
Road closures
Historically, Kennon Road is prone to accidents and road slope disasters. Based on the records gathered from the DPWH
Bureau of Maintenance, there had been at least 27 major road closures varying in duration from 6 hours to months from
the period of 2013 to 2019 caused by Typhoons as listed in Table 1. The types of damages include: landslides, debris
flow, damaged slope protection, rock fall, road slip, and scoured bridge approach.
Table 1: List of road closures along Kennon road from 2013 – 2019
District
Office
Typhoon /
Disaster
Name
Date of
Disaster
Occurrence
Benguet I
Habagat
2019
Kennon Road, Tabaan
Sur, Camp 1, Tuba,
Benguet
K0215+400
-
K00215+415
Benguet I
Ompong
2018
Kennon Road, Benguet
K0216+090
-
K0216+120
Benguet I
Henry,
Josie,
Habagat
and
Ompong
2018
Kennon Road, Camp 1,
Tuba, Benguet
K0216+090
-
K0216+137
Road cut
Benguet I
Falcon
2019
Kennon Road, Benguet
K0221+250
-
K0221+265
Road slip
Benguet I
Lando
2015
Kennon Road, Camp 6,
Tuba, Benguet
K0230+830
-
K0230+850
Slope protection
and affected
Portland cement
concrete
pavement (PCCP)
Benguet I
Lawin
October 19,
2016
Kennon Road, Camp 5
Bridge Detour
K0235+504
Benguet I
Ompong
2018
Kennon Road, Benguet
K0239+275
-
K0239+295
Benguet I
Ompong
2018
Kennon Road, Camp 6,
Tuba, Benguet
K0239+276.2
-
K0239+394,
Benguet I
Ompong
2018
Kennon Road, Benguet
K0239+324
-
K0239+398
Benguet I
Lando
2015
Kennon Road
K0244+520
-
K0244+560
Landslides
Benguet I
Lando
2015
Kennon Road
K0242+600
-
K0242+750
Landslides
Benguet I
Egay and
Ineng
2015
Kennon Road
K0242+600
-
K0242+750
Landslides
Benguet I
Ineng
2015
Kennon Road
K0242+600
-
K0242+750
Damaged slope
protection and
eroded shoulder
Benguet I
Lando
2015
Kennon Road
K0244+520
-
K0244+580
Flood control
structure, slope
protection and
concrete barrier
Benguet I
Lando
2015
Kennon Road,
K0244+520
-
K0244+560;
Landslides
Benguet I
Lando
2015
Kennon Road
K0246+915
-
K0247+027
Road slope
Road Section /
Bridge Name
Sta. Limits / Section
Remarks
Scoured approach
A and midspan
support damaged
Road cut
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Benguet I
Lando
2015
Kennon Road
K0246+915
-
K0247+027
Road slope
Benguet I
Lando
2015
Kennon Road
K0247+000
-
K0247+550
Landslides
Benguet I
Lando
2015
Kennon Road
K0247+000
-
K0247+552
Landslides
Benguet I
Lando
2015
Kennon Road
K0247+048
-
K0247+060,
Right Side
Slope protection,
Concrete Curb
and Gutter
Benguet I
Egay
2015
Kennon Road
K0247+048
-
K0247+060,
Right Side
Slope Protection,
Concrete Curb
and Gutter
Benguet I
Lando
2015
Kennon Road
a.) K0242+600 - K0242+750; b.)
K0244+520 - K0244+560; c.)
K0247+000 - K0247+550
Landslides
K0230+170
Landslides
Benguet I
2014
Kennon Road
Baguio
City
Maring and
Habagat
2014
Kennon Road, Baguio Bauang Road,
Gen.Luna Road, Major
Mane Road, Governor
Pack, Chuntug St., St.
Chanum St.,
Magsaysay Road
-
K0230+185
Benguet I
2013
Kenon Road
K0230+170
-
K0230+185
Benguet I
Labuyo and
Odette
Maring
2013
K0236+450
-
K0236+500
Benguet I
Labuyo
2013
Kennon Road, Camp 4,
Tuba
Kennon Road
K0236+450
-
K0236+470
Potholes and
scoured shoulder
Landslides
Landslides
Kennon Road had also been closed since July 2018. It was only opened this past Christmas season beginning November
29, 2019 for the Northbound traffic or upward direction in order to accommodate the influx of visitors. Today, it is open
from Friday (6:00 AM) to Monday (6:00 PM) but remains closed on other days while only the residents of the area are
allowed to pass.
Existing road condition
Based on the DPWH Road Condition Data as of October 15, 2020, Kennon Road has a total length of 33.691 km. It is
composed of 11.021 km. asphalt pavement (32.71%) and 22.670 km. concrete pavement (67.29%). The assessment of
the road surface condition is as follows: good (59.32%), fair (28.66%), poor (8.55%), and no assessment (3.47%).
Existing bridge condition
There are 18 bridges along Kennon Road – 12 steel bridges and 6 concrete bridges. Most of the bridges were constructed
in 1968 and have a load limit of 10 tons. Camp 5 Br. 2 is a newly constructed bridge completed in 2019. Thus, it has a
higher load limit of 20 tons. Based on the DPWH Bridge Management System (BMS) 2020 data, most of the bridges are
in good or fair condition as shown in Table 2. Two bridges have already been widened namely: Kennon Br. 1 and Kennon
Br. 2. Only Demonstration Bridge located in Camp 6, Tuba, Benguet (K0238+234) is in bad condition because it was
severely damaged by Typhoon Lando. Demonstration Bridge was already demolished and its replacement is already
being constructed.
Table 2: Condition of bridges along Kennon road (BMS survey 2020)
No.
District
Bridge Name
Type
Length (m)
Width
(m)
Load
Limit (T)
Condition
1
Benguet I
Camp Br. 1
Steel
94.33
8.30
10
Fair
2
Benguet I
Twin Peaks Br.
Concrete
8.97
8.55
10
Good
3
Benguet I
Colorado Br.
Steel
19.10
8.90
10
Fair
4
Benguet I
Ampasit Br.
Concrete
11.80
8.30
10
Good
5
Benguet I
Camp 3 Br. 2
Steel
102.85
8.30
10
Good
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6
Benguet I
Ataki Br.
Steel
22.40
8.90
10
Fair
7
Benguet I
Camp 4 Br. 1
Steel
73.00
11.20
10
Fair
8
Benguet I
Camp 4 Br. 2
Concrete
24.90
9.60
10
Fair
9
Benguet I
Pugo Br.
Steel
46.34
8.64
10
Good
10
Benguet I
Maramal Br.
Steel
74.10
8.50
10
Fair
11
Benguet I
Camp 4 Br. 4
Concrete
11.40
8.30
10
Poor
12
Benguet I
Camp 4 Br. 5
Concrete
8.90
8.28
10
Fair
13
Benguet I
Camp 5 Br. 1
Steel
45.25
9.28
10
Fair
14
Benguet I
Camp 5 Br. 2
Steel
51.25
9.40
20
Fair
15
Benguet I
Camp 6 Br.
Steel
111.90
8.85
10
Fair
16
Benguet I
Demonstration Br.
Concrete
44.45
7.40
10
Bad
17
Baguio City
Kennon Br. 1
Steel
15.60
12.25
15
Good
18
Baguio City
Kennon Br. 2
Steel
48.50
9.60
15
Good
Traffic data
The Annual Average Daily Traffic (AADT) for the year 2018 ranges from 10,733 before Camp 1 to 14,980 at Baguio
General Hospital. This data was taken from DPWH Road Traffic Information Application (RTIA) which is managed by
the DPWH Bureau of Quality and Safety. It was observed that Kennon Road still generates a lot of traffic and many
motorists still pass by this route despite the dangers that it poses. At present however, with the imposition of travel
restrictions due to the coronavirus disease 2019 (COVID-19), traffic is significantly lower at Kennon Road.
Proposed Countermeasures
The DPWH CAR Regional Office had identified 25 critical sections that need to be addressed with a total amount of PHP
3,441,780,000.00 as presented in Table 3. 4 Sections had already been funded in 2018 and 2019 while 21 sections remain
for funding. Sections 1 to 14 are classified as Priority 1 while Sections 15 to 21 are Priority 2.
Table 3: Critical sections and funding status
Particulars
Year | Amount (PHP ’000)
2018
2019
2020
2021 Onwards
25 Critical Sections
Funded (4 Sections)
Total
3,441,780
290,000
350,000
640,000
For Funding (21 Sections)
2,801,780
Priority 1
507,000
(Section 1-14)
Sections
1|2|5|6|9|10
1,235,500
1,742,500
1,059,280
1,059,280
Part of Sections
11|12
Priority 2
(Section 15-21)
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Priority 1
Sections 1 to 14 are classified as Priority 1 of DPWH CAR. The details of the scope and type of work for each area is
shown in Table 4. Some of these projects were already funded under the General Appropriations Acts (GAA) 2020. The
proposed projects mostly consist of rock netting and slope trimming works. Other works also include provision of curtain
net, rock fence, and rock shed. A sabo dam will also be constructed to contain the debris washed off by water tributaries.
Table 4: Priority 1 sections
Section
Start
Stationing
End
Stationing
Physical
Target
Allocation
(PHP '000)
Type of Work
K0227 + 169
K0227 + 215
1,820 sq.m.
31,902
Rock netting with slope
trimming & Portland cement
concrete pavement (PCCP)
Yes
1
2
K0228 + 067
K0228 + 170
3,180 sq.m.
66,784
Rock netting with slope
trimming & PCCP
Yes
3
K0228 + 204
K0228 + 272
816 sq.m.
14,687
Curtain Net / Rock Fence
No
K0228 + 804
K0228 + 874
1,750 sq.m.
35,000
Rock netting with slope
trimming & PCCP
No
K0228 + 886
K0228 + 970
84 m.
100,800
Rock shed w/ PCCP
No
5
K0229 + 090
K0229 + 270
5,382 sq.m.
94,339
Rock netting with slope
trimming & PCCP
Yes
6
K0232 + 535
K0232 + 605
2,330 sq.m.
40,842
Rock netting with slope
trimming & PCCP
Yes
7
K0233 + 475
K0233 + 637
162 m.
194,400
Rock shed w/ PCCP
No
No
4
8
9
10
11
Funded in
GAA 2020
K0235 + 000
K0235 + 095
3,800 sq.m.
95,000
Cribwall with Soil Nailing
and wire mesh protection
K0235 + 095
K0235 + 147
2,080 sq.m.
41,600
Rock netting with slope
trimming & PCCP
No
K0235 + 147
K0235 + 208
2,745 sq.m.
68,625
Cribwall with Soil Nailing
and wire mesh protection
No
K0235 + 410
K0235 + 480
Double Cribwall & PCCP
Yes
2,997 sq.m.
49,570
Rock netting with slope
trimming at & PCCP
Yes
7,232sq.m.
119,616
Rock netting with slope
trimming & PCCP
Yes
85,192
Rock netting w/ 3-layer Sabo
Dam
Yes
3,660sq.m.
Double Cribwall w/ PCCP
Yes
K0235 + 406
K0235 + 480
K0235 + 834
K0236 + 016
K0237 + 265
K0237 + 391
K0237 + 340
K0237 + 385
K0237 + 236
K0237 + 529
3,516 sq.m.
63,288
Retaining Wall with Rock
Fence & PCCP
No
K0237 + 529
K0237 + 777
248 m.
297,600
Rock shed w/ PCCP
No
K0238 + 150
K0238 + 225
75 m.
18,755
Retaining Wall with
Rockfence
Yes
No
K0238 + 234
K0238 + 278
50 m.
75,000
Sabo Dam at upslope of
Replacement of
demonstration Bridge with
upslope Sabo Dam
13
K0238 + 815
K0239 + 000
6,475 sq.m.
129,500
Rock netting with slope
trimming & PCCP
No
14
K0239 + 000
K0239 + 100
100 m.
120,000
Rock shed w/ PCCP
No
12
Total
1,742,500
Priority 2
Sections 15 to 21 are classified as Priority 2 of DPWH CAR. The exact stationing and type of work is shown in Table 5.
These mostly consist of rock netting and slope trimming works.
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Table 5: Priority 2 sections
Section
Start
Stationing
End
Stationing
Physical
Target
Allocation
(PHP '000)
Type of Work
15
K0219 + 000
K0219 + 600
9,000 sq.m.
180,000
Rock netting with slope
trimming w/ PCCP
16
K0222 + 000
K0222 + 333
5,994 sq.m.
119,880
Rock netting with slope
trimming w/ PCCP
17
K0223 + 745
K0223 + 827
2,050 sq.m.
41,000
Rock netting with slope
trimming w/ PCCP
K0224 + 110
K0224 + 250
3,080 sq.m.
61,600
Rock netting with slope
trimming w/ PCCP
K0224 + 280
K0224 + 545
11,925 sq.m.
238,500
Rock netting with slope
trimming w/ PCCP
19
K0224 + 935
K0225 + 072
6,165 sq.m.
123,300
Rock netting with slope
trimming w/ PCCP
20
K0230 + 000
K0230 + 250
8,750 sq.m.
175,000
Rock netting with slope
trimming w/ PCCP
21
K0239 + 200
K0239 + 500
6,000 sq.m.
120,000
Rock netting with slope
trimming w/ PCCP
18
Total
1,059,280
Assessment of engineering countermeasures
Based on the JICA and DPWH Road Slope Manual 2019, the selected engineering countermeasures can be checked if
they are appropriate using the developed flowcharts. These flowcharts can be referred directly from the manual.
Conceptual Framework
Travel time and highway network redundancy
Among the benefits of using Kennon Road is the faster travel time. The current travel time from Rosario to Baguio takes
1 hour and 15 min. up to 2 hours during peak times via the Rosario-Pugo Rd and Marcos Highway with a total distance
of approximately 47.4 km.
By using Kennon Road, travel time from Rosario to Baguio can be made in less than 1 hour with a total distance of 33.7
km. Hence, the 4-hour travel time from Manila to Baguio can be achieved using the following network of expressways:
North Luzon Expressway (NLEX), Subic-Clark-Tarlac Expressway (SCTEX), Tarlac-Pangasinan-La Union Expressway
(TPLEX), and finally Kennon Road.
Nonetheless, aside from the improvement in travel time, a more important function of Kennon Road is to provide network
redundancy in the Philippine highway system to have an alternate route in case there are road repairs, blockages, or
accidents along Marcos Highway. This would prevent a scenario wherein Baguio City will essentially be trapped and
will have no access going to the lowlands of Metro Manila.
Government spending
DPWH had been allotting funds for the improvement of Kennon Road which includes Regular Infrastructure projects,
Calamity Fund, Maintenance Funds, and Annual Maintenance Work Program. The total funding and expenditures from
2010 up to this year 2020 already reached PHP 3.2 Billion. But despite all these efforts and considerable amount of
investment, Kennon Road remains disaster-prone, and has been plagued with road closures in the past years, making its
usage unreliable.
Project conceptual framework
The Disaster Risk Reduction and Management Framework developed for Kennon Road project is shown in Figure 4.
This was conceptualized based on the four (4) thematic areas of the NDRRMF as follows:
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1) Prevention and Mitigation – the prevention of a disaster is the foremost priority for this project. Based on literature,
the bedrock formation is a factor that influences a landslide event. Hence, an extensive geologic and geotechnical
investigation is recommended to address road slope disasters. An alternative alignment can also be studied which may
utilize other technologies such as tunneling given that the existing alignment of Kennon Road was formed out of an
engineering error. This phase is envisioned to be carried out by a competent team of consultants/experts.
2) Preparedness – this area involves the selection and subsequent construction of countermeasures to remedy the disaster
situation. Using the JICA and DPWH road slope protection manual, the engineering interventions can be assessed with
a flowchart. This phase is envisioned to be undertaken by a highway concessionaire by virtue of Republic Act 7718
otherwise known as the “Amended Build, Operate, Transfer Law”. Through this Public-Private Partnership scheme, the
concessionaire shall be in-charge of the project’s overall financing, design, construction, operation, and maintenance
during the concession period.
3) Response – this occurs during the operations phase of the project. The highway concessionaire assumes responsibility
in the occurrence of a disaster and should have readily available quick response dispatch units to attend to any emergencies
within 10 minutes from accident occurrence. All staff and employees should be properly trained and equipped with
personal protective equipment (PPE) and have standby service vehicles for rescue.
4) Recovery and Rehabilitation – an accident recording system is proposed to store essential information such as the exact
stationing where the slope disaster occurred as well as pictures for documentation. This will be helpful in building back
better infrastructure systems to prevent disasters from happening again. The said system should also utilize a Virtual
Data Room to serve as a back-up for the files that can be retrieved through the cloud for easy access and protection of
data.
The four areas are represented as “steps” which should be taken in order to achieve the outcome of a fast, safe, convenient,
and reliable travel.
Road Slope
Disasters
- geologic and
geotechnical
investigation
- alternative
alignment
KENNON ROAD
- accident
recording system
- build-backbetter
- Quick Response
Team (QRT),
ambulance and
emergency
assistance
- engineering
countermeasures
- transfer of
technology
Consultant
Feasibility Study
Fast, Safe,
Convenient,
Reliable Travel
Highway Concessionaire
Finance
Design
Construct
Operate
Maintain
Figure 4: Kennon road DRRM framework
CONCLUSION AND RECOMMENDATION
Kennon Road is a major route in Northern Luzon that has historical and strategic significance. It is one of the oldest roads
in the country that contributed to the growth and development of Baguio City by becoming the “Gateway to the
Cordilleras”. However, the road is frequented by many road slope disasters such as soil slope collapse, rock slope
collapse, landslide, road slip, debris flow, and river erosion. In this paper, the past disasters that have occurred along
Kennon Road have been examined. The overall condition of the road was also assessed. Based on the evaluation, the
pavement itself is still in mostly good to fair condition while Demonstration Bridge, which was in bad condition, is already
undergoing bridge replacement.
Joseph Rei Mark Co
12
Kennon Road is an important thoroughfare not only in the economic context but also on the point of highway network
redundancy by serving as an alternate route to Marcos Highway. Recognizing this need, the researcher had developed a
disaster risk reduction and management framework based on four principles namely: 1) Prevention and Mitigation, 2)
Preparedness, 3) Response, and 4) Recovery and Rehabilitation.
The Philippine government had been investing a huge amount for the improvement and repair of Kennon Road. But the
results have not been entirely effective. As a game changer, the researcher proposes a Public-Private Partnership scheme
to get a highway concessionaire on board who will be responsible for the entire project life cycle from its financing,
design, construction, operation, and maintenance. In this manner, there will be a single entity accountable in guaranteeing
the safety of motorists using this road.
For the next steps, the researcher recommends the following:
1.
2.
3.
Conduct a full-blown feasibility study to determine the geologic and geotechnical conditions of the area.
Conduct a Land Acquisition and Resettlement Action Plan for the indigenous people who may be affected by the
project.
Conduct a willingness-to-pay survey to assess the viability of the project to be undertaken through a Public-Private
Partnership model.
ACKNOWLEDGMENTS
The author would like to thank the Department of Public Works and Highways Central Office and CAR Regional Office
for the data and figures used in this research.
REFERENCES
DPWH Bureau of Maintenance 2019, ‘Kennon Road Situational Reports’.
DPWH Bureau of Quality and Safety 2018, ‘Summary Traffic Data’.
DPWH Cordillera Administrative Region 2020, ‘Proposed Total Rehabilitation of Kennon Road Presentation’
DPWH Planning Service 2020, ‘Bridge Management System Survey’.
DPWH Planning Service 2020, ‘Final & Official Road Condition Data Cut-Off’.
DPWH Public-Private Partnership Service 2020, ‘Kennon Road Market Sounding Presentation’.
JICA, DPWH 2007, ‘Final Report Guide III: Guide to Road Slope Protection – The Study on Risk Management for
Sediment-Related Disaster on Selected National Highways in the Republic of the Philippines’.
JICA, DPWH 2019, ‘Road Slope Protection Manual’.
Office of Civil Defense and NDRRMC 2011, ‘National Disaster Risk Reduction and Management Framework’.
Saldivar-Sali, A and Einstein, H 2007, ‘A Landslide Risk Rating System for Baguio, Philippines’, Engineering Geology,
vol. 91, pp. 85-99.
Zarate, ER, ‘Kennon Road
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